This document proposes an Early Recovery Road Map (ERRoMap) to improve early recovery planning and implementation in humanitarian response. It discusses challenges faced in applying typical early recovery approaches in urban disaster settings. The ERRoMap would be a geography-based, collaborative planning process to better coordinate humanitarian actors and strengthen local capacity. Case studies from the Philippines, Thailand, and Lebanon provide lessons on integrating urban planning knowledge and participatory approaches into early recovery.

1. Early Recovery Road Map
BRIDGING COLLABORATIVE URBAN PLANNING KNOWLEDGE INTO HUMANITARIAN RESPONSE
Research Project
Strengthening International Humanitarian Post-Disaster Assistance
New Approach to Early Recovery Planning and Implementation
Funded by MSB
Dr. Zeinab Tag-Eldeen
Architecture and the Built Environment, KTH
Department of Urban and Regional Studies
March 2015

2. Presentation Contents
 Overall aim
 Blending Academic research with practice
 Research activities
 Architecture of Early Recovery
 Complexity of urban disaster and potential of planning knowledge
 Experiences drawn from field investigations and practices
 Findings – Why we need to improve ER knowledge?
 Early Recovery Road Map
 MSB Modality to Support ERRoMap
 Recommendations
 The way forward…

3. Overall Aim
 To strengthen the growing input of MSB in ER
 To provide a means of linking urban planning knowledge with
ER operational practices to improve the international
humanitarian assistance.

4. Blending Academic Research with Practices

5. Architecture of Early Recovery

6. ARCHITECTURE OF EARLY RECOVERY
 Review of ‘Early Recovery’ Approach and how early
recovery is applied by number of key international
agencies UNDP/BCPR, CWGER, UNWOMEN (UNIFEM),
OCHA/IASC, ISDR, UN Habitat, UNICEF,WB/GFDRR,
EC/ECHO, IFRC and MSB in addition an overview of
Sweden’s humanitarian assistance.
 Review of the concept ‘Linking, Relief, Recovery and
Development’ developed by ECHO also revealed the
need to improve internal humanitarian response
procedures to meet the challenges of the ‘grey zone’
between response and recovery.

7. ARCHITECTURE OF EARLY RECOVERY
General Findings Major Gaps – in Practice
A common holistic understanding of ER objectives Evaluations of ER approach suggest attributable weaknesses lie in execution
rather than concept
Cluster Approach has introduced a degree of
systematic progress in the coordination of humanitarian
responses.
Coordination is complex, utilizes an ad-hoc basis, and is poorly described
Insufficient strategic focus
Deficiency in monitoring and evaluation
Lack of coordination with the country system’s weakened capacity
Undermining of sustainability
Exit strategies remain problematic
Participation of national or local NGOs in clusters remains marginal
Integration of cross-cutting issues still minimal
Funding and cluster relationships created conflicts of interest
Type of disaster: natural disaster or war/conflict Type of disaster still is a major challenge to determine ER focus, coordination
mechanism, building local capacity and exit strategy
Organizations recognizes ER financing gaps No formal interagency mechanisms for mobilizing resources for ER.
All actors in ER activities are in agreement that ER
should be nationally owned
Decision making process of ER done at global level in relation to initiation and
planning of humanitarian assistance and early recovery without local input.
Organizations have recognized the complexity of the
humanitarian response in an urban environment
Urban planning discussed in relation to its physical aspects
Some attention on the role of planning as coordinating mechanism
Exit strategy Lack of focus on national capacity impacts the timing of ER de-activation

8. Transformative Agenda
 A serious review of the 2005 Humanitarian Reform undertaken by
IASC in 2012 to address the challenges in large scale disaster after the
experience gained from the weaknesses and inefficacies of the
international humanitarian emergency response to the Haiti
earthquake and Pakistani floods of 2010.
 Identifies three basic areas: leadership, coordination and accountability to
improve the timeliness and effectiveness of humanitarian response
operations
 ER is perceived as a multidisciplinary issue, which cannot be tackled by
individual cluster alone.
‘Cluster System’ is visualized in circular form in the Transformative Agenda

9. Complexity Of Urban Disaster And
Potential Of Planning Knowledge

10. Complexity of City
’Wicked Problems’
 Urban problems are ‘wicked problems’ in
nature.
 Urban Dynamics & interconnectedness
 Built environment
 People
 Risk
 Solutions cannot be found through linear
processes and go beyond the scope of a
single discipline
 Urban planning plays a key role in shaping
the physical and social development of cities
through its capacity to deal with spatial
and non-spatial issues
 Planning emphasises the participation of
stakeholders in the decision making
processes.

11. Example Of Wicked Problems In Urban Disaster
Settings And Their Impacts

12. Collaborative Planning
 Interplay between the ‘content’ of a physical plan as a visual
reference for collaboration across clusters and ‘process’ to
do planning / interactive planning process
 Strengthen the coordination mechanism within the
humanitarian cluster system and with other actors
 Emphasize accountability to local institutions and the affected
citizens
 In practice,‘collaboration’ is often interchanged with
‘cooperation’ and ‘coordination’
 Collaborative decision provides conditions for participants to work
together on the same task rather than in parallel on separate
segments of the task
 Coordination and cooperation could be valid for specific subtasks at
later stages, especially when a decision is made collaboratively

13. Geographical Information Systems to support
Decision Making Processes
 Most urban problems are inherently spatial and have
natural synergies and overlaps, therefore geo-analytical
and visualizations techniques are vital to deal with the
heterogeneity of these data and support decision making
process.
 Coordination employs the exchange of data between
cluster…GIS would make better use of these data in
integrated manner

14. Experiences Drawn from Practices
Post-Yolanda, 2013 PhilippinesPost-war, 2006 Lebanon
Post-Katerina, 2005 New Orleans
http://americanhurricanes.weebly.com/analysis.html
… And From Case Studies
Post-Tsunami, 2004 Thailand, Phi Phi Island
http://www.dailymail.co.uk/news/article-2252664/Boxing-Day-
Tsunami-Family-relive-incredible-tale-survival-2004-tsunami-
story-hits-big-screen.html
Post-Sandy, 2012 New Work
http://www.oxfordhumanists.org/?page_id=1195

15. Post-war of 2006 in Lebanon
Urban Planning Support Project – UPS MSB
 Improve the quality of recovery activities.
 Bridge the gap between “recovery” and “sustainable urban development”
 UPS Project is considered to be an integral element in the ongoing
Recovery Program
 Outputs of UPS Project was a platform to develop the proposal of
Early Recovery Research Project.
 The project re-visited in 2011
 Master thesis

16. Pilot Project Aytaroun village
Several Operating Agencies
Sectoral Recovery Projects

17. The first Essay to Merge
Comprehensive planning with Quick
fix Model
 “Comprehensive Recovery Plan” applied in
Aytaroun as a pilot project
 Using GIS techniques (local expertize)
 The Plan includes the different recovery
development themes with a list of priorities
for recovery development projects and the
potential implementing agencies
 It was done in collaboration with three
main group of stakeholders represent the
following actors:
 The Municipality of Aytaroun
 The residents of Aytaroun
 The representatives of the international agencies
and NGOs operating in Aytaroun and the South
of Lebanon.

18. Participatory Process

19. Phuket, Tsunami 2004
Lessons learned
New houses built after Tsunami for fisheries’ in the
city – modern life increases the burden on families
with limited incomes
Fishing involve all the family members
Fisheries refused to leave their land but are still
under the pressure of tourism business in the city
New houses rebuilt in flood zone area
Tsunami Warning System in Phuket
Evacuation sign on the beach in Phuket

20. Women and vulnerable groups
Thailand case
 The most vulnerable groups include women with children or pregnant at
the time of the tsunami, particularly those without official marriage
certificates or legal status.
 Women employed as sex workers.
 often ethnic minority migrants from the north and Burma, were identified
as another vulnerable group.
 Unavailability of gender statistics on tsunami victims impacted planning of
projects for vulnerable women difficult.
 There was inadequate support for female migrant workers without legal
documents.
 Children born after the event have often been omitted from the list of
people eligible for financial assistance.
 Aid money used to be given to heads of households; usually male – who
sometimes lost the money – has led to a rise in domestic violence.
 The early recovery plan was manipulated by tourism interests and business
entities at the expense of poor villagers.

21. Literature Review Of The Use Of Planning Knowledge In Recovery
 American planning scholars draw the attention towards the relevance of planning in disaster management ( e.g.
American Planning Association)
 National disaster recovery framework, 2011 is a result of collaborative efforts that involved planners, housing and
emergency experts
 But institutional and organizational structure of post-recovery in the USA context is different from post-recovery in
the context of developing countries e.g. Philippines, Haiti,Thailand, Lebanon, etc.. Still some lessons could be learned
and modified
 The international humanitarian organization usually come with their own modality and are unfamiliar with the context of the affected country
 Affected countries are mostly un-prepared to deal with recovery issues

22. An Opportunity To Test The Ideas
Tacloban, Philippines

23. As a practitioner involved in recovery
planning for Tacloban City
 Areas of focus to contribute to Early recovery planning:
 building back safer
 gaps and opportunity for recovery in urbanized area
 Recovery of the city as a trade center and educational hub
 Recovery initiatives in the city
 People Capacity
 Lessons to be learned fromYolanda to improve city resilience
Long‐term PlanShort Term Plan ERRT
ERRT should be the focus of recovery planning to ensure sustainability of emergency operations and guide
recovery actions

24. Modalities of shelter kits have resulted poor shelter structure
Lessons learned
 Training of DRR is quite limited
 Durable construction material
including cement is very expensive
or not available
 The few opportunities of building
with durable material is not
accompanied with building back
better knowledge
 No monitoring on building back
better initiatives
 Pre-Yolanda shelter conditions in
some areas is very poor

25. Urban Dynamics: People, Built environment
and Risk
 Pre-Yolanda conditions of vulnerabilities
 Land tenure
 Families social network
 Livelihood, accessibility to services
 People are adding spaces, to earn income
 Hosting families …. Requires support…
to prolong temporary shelter for
number of families
 Dormitories for students and labors
 IDPs live in temporary shelters
 Relocation

26. Urban Dynamics: People, Built environment
and Risk
 Different types of construction and different types of
damages
 Mix use: housing attached to commercial, room for
rent in household, offices, dormitories, business
centres
 Seaport and airport works with limited capacity
 Delay in the recovery of the market and the supply
chain affect the self-recovery of the city
 Municipality services
 Municipality revenues

27. What To Learn From Yolanda Response
Opportunity To Build Resilience
 The scale ofYolanda reveals number of weaknesses
in the response capacity of the city, lessons are
important from different levels to improve resilience
• City preparation forYolanda
• Media role
• Immediate response: food storage , security,
evacuation etc…
• Structure of evacuation centers
• What could have been done better?
• Other risks in Tacloban
 Flood
 Ground shacking – earthquake
 Landslide
 Storm and Strong wind risk
 Identify Resilience Elements of the society

28. Mobilizing People Capacity
Lessons learned
Tacloban’s Universities were not
involved in the recovery of their
city
 Tacloban is educational hub
 Source of technical expertise
Group of teachers and students
in the School of Architecture of
EasterVisayas University
 Voluntary contributed to field
investigations:
 building back safer
 hosting families
 Dormitories conditions
Students andTeachers in EasternVisayas University
(voluntarily, they carried out field investigation to support recovery
planning)

29. Untangling urban complexities
Seven Vital Areas To Energize Recovery
Visualized in an early recovery road map for Tacloban city – free hand sketch
1. Emergency retrofitting in the
area adjacent to the no-build zone
2. Market analysis to identify gaps
and opportunities
3. Management plan to coordinate
vital areas in the relocation
project
4. A joint livelihood-shelter program
5. Mainstream DRR in the city
based on lessons fromYolanda
6. Transitional solutions
7. Campaign to involveTaclobanons

30. Findings
Why We Need To Improve Early Recovery
Interventions And What We Learned
From Practices?

31. Challenges Are In Practice And Urban
Settings
 Despite the degree of systematic progress in the coordination of humanitarian
responses and early recovery interventions introduced by the ER, LRRD and Cluster
Approaches, there are several implications when these approaches are put into
practice and particularly in urban disaster settings.
 Humanitarian actors have focused essentially on rural emergencies.
 Urban settings are more complicated (wicked problems) where socio-economic
and institutional diversity requires deep analysis to understand the dynamic of urban
livelihood and vulnerabilities which contradicts those humanitarian assistance
concepts that assume one modality-fits-all.
 Humanitarian Agencies are challenging new modalities for addressing the
complexity of humanitarian response in urban settings.
 For instance, a pre-established organizational structure, in the USA cases, make a
positive difference in planning, coordinating and implementing early recovery in a post
disaster area.
 Lessons from Katrina were learned that improved the response and early recovery in Sandy
 Urban planning knowledge including a collaborative approach, land use planning and
planners skills are incorporated in pre- and post disaster management
 Early recovery of post-disaster and post-conflict are driven by the same dynamics of
humanitarian assistances and early recovery actions and are led by the same actors.

32. Leading Cluster Practitioners Views
 Underlined the ambiguity with which ER is regarded
describing it as the soft side of response.
 Donors, would prefer to invest in things producing
‘tangible’ results such as school building,
reconstruction, etc...
 ER projects are subject to various interpretations
varying between a single activity such as rubble removal
or to an entire DRR program, Livelihoods programs, or
simply cash for work.
 Coordination may happen vertically within one
cluster but it rarely happens horizontally across
clusters.
 “Coordination mechanism” in many cases is
interpreted as a DATA system to trace donations
with an ultimate goal of avoiding duplication.
 An early recovery approach that aims to achieve an
early exit strategy has to build on local capacity.
 Some of them underline the need of Urban Planner
skills
 It is good if MSB would be specialized and known in
a comprehensive ER approach,

33. Challenges Of Planning In Emergency
Conditions
 It is normal City planning process in all its complexity … but:
 Must happens quickly …Time Stressing factor
 Informed by the various interests of actors that have little knowledge on, or no interest
in… what planning is
 Motivate many stakeholders: citizens, international organizations, international and local
NGOs, government, donors, private sector, universities, other relevant institutions
 Understand the institutional settings in a new context
 Geography/locally based
 Communicate the big picture … but focus on priority issues
 Aware of the opportunities that the disaster have created
 Understand the conditions of vulnerabilities before the disaster to avoid risks
 Assess available resources and ensure the efficient and wise use of these resources
 Means to bring together stakeholders, influence their programs in line with the big
picture
 Mobilize community … deal with people as survivors not as victims
 Coordinate ad-hoc inputs
 Skills to build collaboration

34. Operational Framework Of Early
Recovery Roadmap

35. Early Recovery Road Map ERRoMap
 An additional dimension to the existing early recovery
interventions that is process-driven, utilises geography-
based plan and is governed by collaborative
principles.
 To strengthen early recovery interventions in bridging relief,
recovery and development, and to avoid the creation of
a new entity within the existing international humanitarian
system.

36. ERRoMap – Operational Framework
 It is built up of three main working
components:
1. time-sensitive, integrated and area-based
planning to identify vital areas for early
recovery;
2. inter-organizational interaction;
3. leadership of collaborative type.
 It is guided by five core principles:
1. collaborative,
2. dynamic,
3. inclusiveness,
4. accountability
5. pre- and post-disaster.
Visual description of ERRoMap

37. 1. Time-sensitive, Integrated and Area-based Planning
 Key players from international, national, regional and city/town level
 Area-based plan that illustrates visually – using urban planning techniques – the
interconnectedness aspects of urban dynamic
 GIS techniques facilitate joint planning, bring in several aspects to better integrate the
sectorial humanitarian response in a comprehensive manner to incorporate real time
feedback and progress
 Time-sensitive to minimize loss of opportunities and prevent delays in delivering assistance
Levels of Function and linkage between local, regional and national inputs when making ERRoMap

38. 2. Vertical and Horizontal Inter-Organizational
Interactions
 Both vertical and horizontal inter-
organizational collaborations support
exit strategy
 vertical inter-organizational
interactions, provide reliable
information for decision makers to
increase ability to access
resources.
 horizontal inter-organizational
interactions bring collaboration
with key organizations, key
stakeholders from the society, and to
implement the programs and
projects necessary to speed
recovery.
 Mapping the existing
institutional structure, their
capacity and at what level they
function; the local technical capacity
and available knowledge
Inter-organizational Interactions
(Smith 2011, adapted by the author)

39. 3. Leadership (Collaborative type)
 lead, facilitate and maintain processes that encourage information sharing and a unifying of efforts.
 capacity to see the big picture and be able to build relationships and network so as to facilitate the
process for decision making and forging group vision
 Leader should work with Core Working Group(s): flexible and scalable to mobilize available resources
and socio-economic and human assets
 ‘Planners’ are the group of professionals that have received the most appropriate education, training
and experience for orchestrating the ERRoMap planning process and have the discipline to maintain
its focus on the long term and the development big picture.
Examples of Leadership Skills and Outputs in ERRoMap

40. Guiding Principles of ERRoMap
A physical plan provides a visual
reference for collaboration between the
Cluster Members
Collaborative
 disaster impacts in urban settings necessitates a collective
decision making processes to develop a comprehensive
approach to early recovery operations – to be visualized in a
physical plan using GIS techniques to facilitate collaboration
Dynamic
 continuous updating, monitoring and evaluating process to
transform the information flows of recovery progress that come
from sectoral directions using GIS techniques.
Inclusiveness
 To bring affected communities into the process gives them a
sense of efficacy and builds their capacity to resist future
disaster.
 A key factor in recognizing specific different cultural practices in
disasters is to understand the gendered nature of vulnerabilities
Accountability
 Tracking the progress of activities across sectors will reinforce
realistic expectations among stakeholders, including donors as
well as beneficiaries.
Developed during both, Pre- and Post-disaster to Build
Resilience
 A preparation of ERRoMap, especially in disaster-prone areas, is
best begun with pre-disaster preparedness.

41. Illustration of ERRoMap Process in the Humanitarian Program Cycle
Pre-crisis
Post-crisis:‘getting in’; ‘getting on’ ‘and getting out’ phases

42. Time Line of ERRoMap Operations
 The operations of ERRoMap begins onset of a disaster and continue to work in
accordance to and provide inputs to different requirements specified in the
Humanitarian Program cycle identified by IASC (2012).
 The mission period of an ERRoMap Expert vary between 3-6 months depending on
the scale of the disaster and areas of coverage.
 Local Working Group, will not only help to manage increasing workload, but also to
plan ahead the exit strategy of the expert

43. Proposed Modality of MSB’s Role in ERRoMap
Strategy
 Promote ERRoMap as new area of competence of MSB.
 MSB can provide bilateral support to mainstream ERRoMap in DRR operations.
 Promote the conceptual framework of ERRoMap within UNISDR and ‘Making Cities Resilient’
campaign.
Proactive
 Promote MSB as a profiled agency in ERRoMap among UN Agencies,World Bank and ECHO
through developing guidance, providing training to humanitarian agencies.
 Using IT technology to develop ERRoMap applications
 MSB can develop further thematic ERRoMaps
Preparedness
 Develop ERRoMap training and pedagogic educational package
 Build capacity of MSB staff in ERRoMap knowledge
 Using scenarios to enables development and mainstreaming of ERRoMap and DRR strategies
Proactive
 Together with Sida, MSB selects number of disaster-prone countries to field experts to carry out
number of pilot projects to mainstream ERRoMap in DRR
 Select cases with relatively manageable recovery process crisis to deploy experts to test
ERRoMap and extract more lessons.
 Training and deployment should incorporate gender equity.

44. Recommendations of Further Study for
Operational Purposes
The development of the following studies for operational purposes:
 ERRoMap guidance to be used either separately or added to the existing
ER guidance (BCPR 2008 and revised in 2014).
 ERRoMap pedagogic training packages extracted from the knowledge
produced in this research to be an additional component of the Early
Recovery Training Program carried out at MSB/BCPR:
 The ERRoMap three Working Components and the five Guiding Principles;
 The case studies Katrina, Sandy,Aytaroun, andTacloban; and
 The Architecture of Early Recovery Approaches and Concepts
 Thematic ERRoMap within the existing competences of MSB e.g.WASH,
gender, municipal infrastructure, building institutional capacity in fragile state.
 GIS modality for ERRoMap to integrated use of sectoral data obtained,
for tracking recovery progress and monitoring
 Guidance for pre-disaster ERRoMap to be mainstreamed in DRR
programs.
 Post-conflict ERRoMapVersion, where the focus is on vital early recovery
areas that contribute to peace building, state stability and security.

45. The Way Forward…
MSB
New area of
competence at MSB
Training material
New area of
competence at MSB
Training material
MSB Staff
Pool Roster
MSB Staff
Pool Roster
KTH
Urban & Regional Studies
Education
In Master
Program
Master
Theses
Academic
& Practical
Results
Academic
Team &
Reference
Group
ER
Project
Maximize the use of the established ER, DRR and
sustainable recovery knowledge
 Develop guidance, training, thematic
 Disaster management continuum (pre- & post-crisis)
Make use of the expertize focal group:
 Research / practice oriented Academic Team
 RG members (expertize in humanitarian
operations/ER)
Introduction of ER, DRR & recovery in Planning
 Courses, seminars for practitioners / curriculum
 Interest in planning research e.g. Master and
Doctoral theses
 ER in planning education: New role of planners

46. Thank you…

47. Example of Vital Areas as Applied in
Tacloban

48. Vital Area 1
Emergency retrofitting in the area adjacent to the no-build zone
• Retrofitting to improve safety
• Maximize options for
temporary and permanent
shelter
• Support rent subsidies
• Incentives for densification
initiatives
• Local units for Recovery
Services at Brgs level
• Mobilize community

49. Vital area 2
Market analysis to identify gaps and opportunities
 The chain supplies of basic commodities
• Capacity of the seaport and the airport
• Local business capacity, gaps and opportunities
• Programs to support purchasing capacity
• Facilitate small scale loan programs, tax exemption
• Involve local business in recovery operations
• Examine the recovery of warehouses and alternatives
• Identify potential of PPP
• Metal sheets are collected and sold to Manila…what we
can learn from that?

50. Vital area 3
Management plan to coordinate vital areas in the relocation project
 Communication plan
 Inform residences and get their views
 Coordination Plan
 Study site conditions to consider mitigation measures
 Coordinate inputs from different agencies
 Maximize capacity of public transport
 Pedicabs
 Banka
 Incentives to investors who can establish livelihood activities within short
period
 Consultation with the existing Puroks and social structure of the affected
communities
 Elaborate of community-based process for relocation including core-houses,
participation in construction, livelihood initiatives etc…
 Alternative solutions of the Brgs administrative structure in the affected
communities
The new location (above) and the dumpsite adjacent to
that location (below)

51. Vital Area 4
A joint livelihood-shelter program
 Maximize the benefit from the coconut trees affected by
Yolanda
 Think spatially to maximize accessibility to coco lumbers
 Solve ownership problem of the trees
 Develop program based onWin-win strategy with the
owners
 Small programs that supports access to trees in the
surroundings to minimize transport.

52. Vital Area 5
Mainstream DRR in the city based on lessons from Yolanda
• Revise Tacloban Response to
Yolanda
 Preparation
 Evacuation
 Recovery
• Initiate collaboration with the
universities to identify lessons
learned from PostYolanda
response and make use of
knowledge produced in this regard
• Identify the resilience elements of
the society to build further on that

53. Vital area 6
Transitional solutions
Minimize temporary solutions
through maximizing
permanent solutions
 Clear policy on no-dwelling
zone based on risk and
vulnerability assessment on
the coastal zone
 Transitional solutions should
be delivered with
consideration to:
 Not reproducing
vulnerabilities
 Bunkhouses
Bunkhouses built by the Government for temporary sheltering of the
affected families from the no-dwelling zone

54. Vital Area 7
Campaign to involve Taclobanons
Using media, public event, festival with famous singers,
churches, etc…
A campaign:
‘Working together for Recovery ofTacloban’
Mobilize the capacity of:
 Universities
 Civil society
 Business community
 Professional occupancy associations
 Puroks representatives
 Un-employees as workforce for recovery
 Youth students
 Women
 Elderly
 People with special needs
Build on community resilience
Students and Teachers in Eastern Visayas University
(voluntarily, they carried out field investigation to support recovery
planning)

55. Functional framework
Early Recovery Roadmap
 Functional framework of the roadmap will be developed in
collaboration with the Municipality, humanitarian actors, cluster
members, International and National NGOs, and the private
sector.
 Tasks linked to programs and milestones for each vital area
 Assessment to the vital area to define areas of interventions
 Rough estimation of coast
 Technical assistances
 Financing plan
 Implementing entity
 Indicators to monitor progress
Who is doingWhat,Where andWhen?